CAPS at Ten Community Policing in Chicago An Evaluation of Chicago’s Alternative Policing Strategy Prepared by The Chicago Community Policing Evaluation Consortium Wesley G. Skogan Lynn Steiner ________________________________________________________________ Claudia Benitez Jason Bennis Sarah Borchers Jill DuBois Rita Gondocs Susan Hartnett So Young Kim Sarah Rosenbaum The Chicago Community Policing Evaluation Consortium is coordinated by the Institute for Policy Research, Northwestern University. It also includes the University of Illinois-Chicago. It is supported by grants from the Illinois Criminal Justice Information Authority. January 2004 This project was supported by Grant #01-DB-BX-0017, awarded to the Illinois Criminal Justice Information Authority by the Bureau of Justice Assistance, Office of Justice Programs, U.S. Department of Justice. The Assistant Attorney General Office of Justice Programs, coordinated the activities of the following program office and bureaus: Bureau of Justice Assistance, Bureau of Justice Statistics, National Institute of Justice, Office of Juvenile Justice and Delinquency Prevention, and the Office for Victims of Crime. Points of view or opinions contained within this document are those of the authors and do not necessarily represent the official position or policies of the Illinois Criminal Justice Information Authority or the U.S. Department of Justice. Printed by authority of the State of Illinois, Month 2004 Printing order #XX-XXX X, XXX copies CAPS Report Contributors 1993-2003 Scott Althaus Kimberly Lacker Edward Anderson Paul J. Lavrakas Jonathan Anfinsen Justine H. Lovig Claudia Benítez Arthur J. Lurigio Susan F. Bennett Scott Medlock Jason Bennis Melissa Miller Aaron Bicknese Gail Musial Richard L. Block Gabriela Nava-Campos Sarah Borchers Jonathan Parker Paula Brandao Aaron Petty Chelsea Brown Saty Reddy Katey Casper Judee Richardson Dana Cole Dennis P. Rosenbaum Jennifer T. Comey Sarah Rosenbaum Zachary Cook Brandon Rottinghaus Gail Dantzker Betty Ruiz Sirgulina Davidsdottir Diana Ruiz Jill DuBois Rosie Ruiz Aimee Fagan Steve Ryan Tulia Faletti Wesley G. Skogan Archon Fung Jinney Smith Aneta Galary Jennifer Smith Rita Gondocs Lynn Steiner Noelle Gonzalez Cody Stephens Lisa Graziano Aaron Sumrall J. Erik Gudell Joseph Tan Susan M. Hartnett Negar Tekeei Ricky Hazelwood William Troutman Lynn Higgins Karla Twedt-Ball Sheila Houmes Raj C. Udeshi Almas Hussein Kimmy Van Robert Jessen Mai Van Kayla Johnson Robert VanStedum Tabatha R. Johnson Alice Virgil Marianne Kaiser Wuyi Wang Katie Kaminski Dominique Whelan Emily Keebler Sheri Wong Tom Kelly Norman Wyroll Jinha Kim Alexander Young So Young Kim Lisa Zhao Joel F. Knutson Contents Executive Summary............................................................ i Introduction ..................................................................1 Public Involvement ............................................................2 Trends in Awareness of CAPS .............................................2 Sources of Information About CAPS ........................................4 Participation in Beat Meetings..............................................6 Who Gets Involved? ....................................................12 Marketing CAPS .......................................................17 Efforts to Improve Beat Meetings..........................................17 Trends in Beat Meeting Quality ............................................19 Public Satisfaction......................................................24 Representativeness......................................................25 What Makes Beat Meetings Work?.........................................31 District Advisory Committees.............................................35 Confidence in the Police .......................................................38 Trends in Public Confidence..............................................39 Continued Racial Divisions...............................................43 Age, Affluence and Family Factors.........................................45 Personal Experiences....................................................46 Personal Experience and Neighborhood Effects ...............................49 Trends in Crime and Fear ......................................................52 Trends in Recorded Crime................................................52 Race and Trends in Crime ................................................54 Why is Crime Down?....................................................57 Public Perceptions of Crime ..............................................61 Trends in Fear of Crime..................................................68 How Did Chicago Do?...................................................73 Tackling Neighborhood Problems ................................................75 Agency Partnerships ....................................................77 Resident Involvement in Problem-Solving ...................................88 Trends in Decay and Disorder .............................................94 What Happened to Latinos in Chicago? ....................................103 CAPS and the Latino Community...............................................108 Study Beat Profiles ....................................................109 Methodology .........................................................113 Neighborhood Problems ................................................113 Distinctive Latino Concerns .............................................118 Involvement in CAPS ..................................................124 Relationships Between the Police and the Latino Community...................131 Recommendations .....................................................133 Management Accountability ...................................................134 Overview of the Management Accountability Process .........................135 Aspects of Management Accountability ....................................136 Management Accountability and Technology ................................147 Management Accountability and Community Policing .........................148 Findings.............................................................151 Other Recommendations................................................152 Conclusion and Final Grades...................................................153 Figures Figure 1 Sources of CAPS Awareness, 1996-2003 .................................4 Figure 2 Trends in Beat Meeting Attendance, 1995-2003 ...........................7 Figure 3 Awareness of Beat Meetings, 2003 .....................................8 Figure 4 Factors Associated with Beat Community Meeting Attendance, 2002 .........10 Figure 5 Organization Involvement and CAPS Participation, 2003 ...................13 Figure 6 Frequent Beat Meeting Participants, 2003 ...............................16 Figure 7 Trends in Satisfaction with Beat Meetings, 1995-2003 .....................25 Figure 8 Demographic Representation at Beat Meetings, 2002 ......................27 Figure 9 Interest Representation at Beat Meetings, 2002 ...........................29 Figure 10 Representativeness of District Advisory Committees ......................37 Figure 11 Trends in Assessments of Police Service Quality, 1993-2003 ................41 Figure 12 Race Differences in Opinions About Police, 2003 .........................44 Figure 13 Age and Other Factors Affecting Attitudes Toward Police, 2001-2003 ........45 Figure 14 Age-Race-Sex Distribution of Stops by Police, 2001 .......................47 Figure 15 Attitudes and Contacts with Police, 2001 ................................48 Figure 16 Trends in Recorded Crime, 1991-2002 ..................................53 Figure 17 Race and Trends in Violent Crime, 1991-2002 ...........................55 Figure 18 Trends in Property Crime, 1991-2002 ..................................56 Figure 19 High-Rate Robbery Beats, 1991-02 and 2001-02 ..........................57 Figure 20 Neighborhood Crime Problems by Race, 1994-2001 .......................63 Figure 21 Official and Survey Crime Trends, 1994-2003............................66 Figure 22 Race, Neighborhood Problems and Contacts with Police, 2001 ..............67 Figure 23 Trends in Fear, by Race, Age, Gender and Language ......................70 Figure 24 Robbery Trends in 10 Cities, 1991-2002 ................................73 Figure 25 Chicago and Big-City Trends in Crime, 1991-2002 ........................74 Figure 26 City Service Request Form ..........................................86 Figure 27 Race and Trends in Physical Decay, 1994-2003 ..........................95 Figure 28 Race and Trends in Social Disorder, 1995-2001 .........................100 Figure 29 Areas of Latino Concentration, 2003 ..................................104 Figure 30 Language, Latino Concentration and Neighborhood Problem ...............105 Figure 31 Field Study Areas .................................................109 Figure 32 Selected Latino Problems, 2001 and 2003 ..............................114 Figure 33 Perceptions of Police Corruption and Excessive Force, 2003 ...............120 Figure 34 OMA Functions ..................................................137 Figure 35 OMA Analyses of District Crime and Plan Implementation ................138 Figure 36 OMA Analysis of Trends in Crime....................................139 Tables Table 1 Personal Background and Awareness of CAPS, 1996-2003 ..................3 Table 2 Components of a Model Meeting, 1998 and 2002 .........................20